City of Lebanon, NH

Downtown Vision Plan and Tunnel Assessment

Working Draft September 2016

Executive Summary

(Working Draft) Downtown Vision Plan and Tunnel Assessment

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Executive Summary

Lebanon Central Business District Vision & Purpose Downtown Lebanon shall continue to be a vibrant part of the community - a crossroads where residents and visitors work, meet, shop, learn, participate in local governance, and share in a good quality of life and a firm sense of community and belonging. The City of Lebanon seeks to promote and enhance downtown Lebanon as a vital business, social and recreational center of the community while preserving its historic “small-town” atmosphere.

Overview Downtown Lebanon has historically been a vibrant part of the community. This core area, located at the center of the City, went through substantial redevelopment over the years, including the urban renewal efforts after the 1964 fire, and still remains in a process of transformation. Today, the downtown has great potential for additional improvements in the way it looks, feels, and functions. This study represents the City‘s efforts in identifying a long-range, multi-faceted, community-led vision of how to make downtown Lebanon a desirable destination for the region while, in such a context, understanding the best reuse potential of the former railroad tunnel under the Hanover Street Pedestrian Mall. The analyses and recommendations in this study were developed not only in regard to specific goals and objectives identified in the Lebanon Master Plan, but also substantial public input that was gathered through broad citizen engagement.

Purpose of the Downtown Plan and Tunnel Assessment The purpose of this study is to identify and assess, through citizen engagement and professional analysis, the range of alternatives and feasibility for revisioning the downtown, and to enhance the physical

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Downtown Vision Plan and Tunnel Assessment (Working Draft)

appearance and functionality of the area. The study establishes alternatives for building redevelopment, traffic circulation, bike and pedestrian connections, and streetscape amenities. The plan outlines in-depth recommendations and actions that the city can move forward with to achieve the near-term and long-term elements of the preferred plan. The tunnel is a key aspect of the downtown plan. The planning process has identified recommendations for the reuse of the tunnel that will let the City move forward with its reconstruction so that the tunnel will become a contributing factor to the revitalization of the downtown area.

Study Area The study area as shown in Figure ES.1 encompasses the core components of downtown Lebanon as defined in the Lebanon Master Plan. It intentionally includes all of the major roadway infrastructure, commercial and mixed use buildings, and open spaces, and excludes some of the residential areas that are much less likely to change in functionality. Within the study area, the existing fabric of the downtown is made up of a series of buildings, open spaces, and riverfront connections. The

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Executive Summary

historic pattern of the downtown has been shaped by the buildings and edges along the arrival gateway corridor of Hanover Street as well as the spaces at and around Colburn Park that are defined by buildings of various scales. The unique characteristics of the riverfront area of downtown are displayed by the residual industrial uses and the open areas and parks along the river. Immediately adjacent to the study area, the city grew into largely residential neighborhoods with much smaller building footprints.

Downtown Lebanon Market Opportunities Chapter Three provides a synopsis of downtown Lebanon’s market opportunities. The full market opportunity analysis is included as Appendix B.

SynopsisThe ofUpper Downtown Lebanon Market Opportunities Valley regional economy is one of New Hampshire’s best

performing regional settings. AnchoredResearch, by the Dartmouth Hitchcock This section of the report, prepared by Applied Economic provides a synopsis of downto The downtown urban fabric has also been significantly shaped by major Medical Center, Dartmouth College and a diverse private sector Lebanon’s market opportunities. The full market opportunity analysis has been provided to the C historic events, particularly the 1964 fire within and adjacent to under separate cover. economy, the economic base of the region tends to be stable when the downtown. The City implemented an urban renewal plan following the US and State economies are contracting, and to expand when those 1964 fire that included relocating the historic main street (Hanover economies are growing. The region typically exhibits the lowest Street) to the south behind the downtown buildings and converting the unemployment rate in the State. former public street to a pedestrian mall. The realignment of Hanover This report estimates downtown Lebanon’s potentially supportable space in new and substantially The analysis examined the regional economic trends, the current Street eliminated several roadway connections inrenovated downtown, investment especially over the 2015-2030 period. The analysis examines the regional economic tr inventory of space in downtown, and the absorption of new nonthe direct connection between Hanover Street and Colburn Park, in the current inventory of space in downtown, and the absorption of new non-residential and multiresidential and multi-family space in Lebanon and estimates of order to provide space for additional parking andspace building in development Lebanon and estimates of downtown’s potential capture of that projected new developm downtown’s potential capture of that projected new development at the western end of the pedestrian mall. activity in the City. activity in the City. Built upon the existing urban fabric of the downtown today, this study Downtown’s potentials Downtown’s are estimated as follows: potentials for growth are estimated as follows: explores the next phase of downtown development and how additional growth and redevelopment can help reestablish edges, places, and Downtown Lebanon Market Potential, 2015-2030 connections that would further reinforce the history of the community. Low Range High Range

Conclusions

To fully understand the challenges and opportunities posed by the downtown study area, an analysis was conducted to review current zoning, utilities, historical and cultural resources, natural resources, and transportation, and to assess the existing conditions of the former railroad tunnel. Chapter Two of this report provides an overview of these existing conditions.

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Downtown Vision Plan and Tunnel Assessment (Working Draft)

Multi Family Units Multi Family Square Feet

180 216,000

270 324,000

Office Square Feet

22,000

45,000

Retail Square Feet

25,000

50,000

In addition to these market potentials, there is the possibility that downtown will accommodate ne institutional and government space. Lebanon will have to invest in its downtown to realize these potentials—by implementing many, if not all, of the recommendations in the overall Downtown Vi Plan.

In addition to these market potentials, there is the possibility that downtown will accommodate new institutional and government space. Lebanon will have to invest in its downtown to realize these potentials—by implementing many, if not all, of the recommendations in the overall Downtown Vision Plan. As noted, downtown’s opportunities are constrained more by the availability of developable sites than by the regional economy.

Public Involvement Public involvement was an important component of the Downtown Vision Plan and Tunnel Assessment project as it provided opportunities for all voices to be heard and contributed to an inclusive and resilient planning process. Chapter Four provides a summary of the Public Involvement measures that were undertaken during the course of planning process. Through the course of the project, stakeholders with different backgrounds were engaged to participate in a variety of public outreach events such as stakeholder interviews, public forums, and surveys. This section includes a summary of the major public outreach activities. Stakeholder interviews were scheduled early in the planning process. The interviews included meetings with local property and business owners, non-profit organizations and institutions that have an interest and/or history with the downtown study area, and City departments. Three public meetings were held throughout the public outreach process where hundreds of residents and community members participated. In concurrence with the public meetings and stakeholder interviews, the City initiated two online surveys that were intended to solicit feedback and comments about a variety of topics surrounding the Downtown Visioning Study and Tunnel Project.

The City also initiated a poster exercise where participants were asked the question :“I Wish Downtown Lebanon…” Large posters of the question and an aerial image of the downtown study area were displayed at several locations and/or occasions, including the City Hall, The Lebanon Diner, One Court Street, and the CCBA lobby. In efforts to publicize the project, as well as provide a centralized source of information and an open channel of communication with the public, the City created a Downtown Visioning Study & Tunnel Project webpage hosted on the City’s official website under the Planning & Zoning page.

The Plan The Plan for Downtown and the Tunnel emerged from an extensive outreach program that was undertaken during the course of the study and was targeted to reach a broad cross section of the Lebanon community. The Plan is described in Chapter Five that illustrates the potential for the downtown to transform from its current conditions (See Figure ES.2) into a vibrant place that reconnects downtown to the riverfront and sets the stage for many new activities to occur, as it advances many initiatives that will unlock the potential for downtown to reach full build-out (See figure ES.3). Through the input gained at public meetings, local stakeholder interviews, and online surveys, the Plan represents a hybrid of various pieces of the alternatives that were developed, and as such, identifies Key Concepts that collectively form the ‘backbone’ for implementing recommendations throughout the downtown. This section outlines six ‘Key Concepts’ that address Urban Design, Transportation, and Economic Development recommendations.

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Figure ES.2 - Downtown Perspective Today Key projects related to advancing the Downtown Arts Walk include: Project 1 - Mascoma Riverwalk and Overlook Project 2 - Downtown Mall Arrival and Plaza Project 3 - North Park Street

2: Enrich retail, cultural programming, public space and vibrancy through sensitive mixed-use development District

Program Description

Mall Area, nearer term

21,000-28,000sf mixed-use development in one 3-4 story building at the Mascoma Overlook (2-5 stores/ restaurants and either 15-25 housing units or 15,00025,000sf office space). Displace approximately 40 of 110 parking spaces currently available along Hanover Street; accommodate this with improved wayfinding and parking time restriction encouraging greater use of parking north of Mall.

Mall and Flynn Street area, longer-term

80,000-160,000sf housing or mixed-use development in two 3-4 story buildings featuring Mascoma River views (up to 150 housing units, or fewer units combined with office/educational and/or retail use). Up to about 30,000sf of this may be developed without need for parking structure; shared-use parking structure likely necessary for greater amounts of development. Achieving higher end of range requires removing existing buildings at 45 Hanover Street.

Spencer Street:

120,000-150,000sf of housing and/or office/flex space. Approximately 60,000sf of this possible at DPW site, with the remainder on 3+ additional sites. Surface parking assumed.

Key Concepts 1: Create the Downtown Arts Walk The Downtown Arts Walk will integrate downtown’s signature destinations for culture, food and education as the Upper Valley’s premier cultural district. Distinguished by consistently walkable design, active public spaces and public art, the welcoming quarter-mile walking route will link features that currently feel separated. Starting at a new programmable public space overlooking the Mascoma River at Hanover Street, the Arts Walk will connect the river with the pedestrian Mall, downtown’s center for retail and dining. The Arts Walk will pass through the Mall and continue eastward along an expanded sidewalk along North Park Street with improved walking connections to Colburn Park and the Opera House. It will then proceed further east along Bank Street to reach the AVA Gallery and Art Center, with additional improved walking connections reaching the public library and post office.

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Downtown Vision Plan and Tunnel Assessment (Working Draft)

North Hanover: 25,000-30,000sf of housing and/or retail on two or more infill sites. Surface parking assumed. Hanover & 25,000-35,000sf retail and/or housing. Surface Mascoma Street, parking assumed. near Fire Station

Figure ES.3 - Downtown Perspective - Full Build

Potential New Development Public Realm Improvements Parking (existing and new) Mascoma River Greenway River Trail

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Executive Summary

Existing downtown retail and dining establishments will thrive, and be joined by additional businesses as part of a destination retail and dining district for the Upper Valley. Formal and informal performances, exhibits and other cultural events will expand, supported by larger audiences and stronger cultural organizations. Sidewalks and public spaces will come alive with people weekdays, weeknights and weekends alike, in all four seasons. Lebanon’s economy will grow along with expanded downtown employment and workforce. Key to this will be two projects in retail infill/mixed use and parking enhancements. There is great potential to infill the downtown with development that could contribute programming and vibrancy by expanding sensitive mixed-use development “opportunity sites” surrounding the Mall, follow Spencer Street and line edges of Hanover Street. The following table outlines the potential for new growth in and around the downtown.

3: Complete the Mascoma River Greenway with new riverfront and tunnel segments The Mascoma River Greenway will become complete with a new downtown segment featuring unique recreational experiences along the river and convenient connections to downtown destinations and streets, with minimal interference from street traffic. Filling the current downtown gap by reusing the tunnel as its preferred alignment will open a wealth of recreational opportunities, from everyday strolls between downtown and neighborhoods, to ambitious bicycle treks across the region.

Unlike the existing tunnel, that has dozens of leaking joints in the slab surface, the new tunnel will likely include a cast-in-place concrete slab with minimal joints. The concrete slab can be configured easily to accommodate different span configurations, building edges, irregular supports, and customized surface treatments for the plaza area or access features above.

4: Welcome people downtown with an attractive Hanover Street Hanover Street, from the Route 120 intersection to Colburn Park, will provide an attractive and safe entrance to downtown. Improved sidewalks and crosswalks will create safer, more inviting walking connections. This includes opportunities for crosswalk improvements, streetscape enhancements, and transportation/circulation strategies. Bike lanes will provide safe space for cyclists. Major intersections will be reconfigured to allow safer and easier passage by motorists, and convenient on-street parking will be available. Additional street trees, lampposts and distinctive signage will create a consistent look and feel. Parking lots and other gaps will be filled with new buildings contributing to a synergy of residential and business activity along Hanover Street.

Project 1 - The Tunnel

The proposed Hanover Street improvements will start at the existing Hanover Street / Route 120 intersection and extend all the way into the downtown. The changes will improve the arrival and travel experience from the north in various ways.

The rehabilitated tunnel will provide a more inviting trail connection for

Key projects related to advancing the Downtown Arts Walk include:

Key Projects related to advancing the Mascoma River Greenway include:

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its users that includes a new paved path and safety lighting along the roof slab. Drainage and runoff will be diverted and channelized or collected along the edges of the path as well.

Downtown Vision Plan and Tunnel Assessment (Working Draft)

Project 1- Reconfigure the Hanover St. / Route 120 Intersection

that will set the stage for ongoing investments in the Downtown.

Project 2 - Enhance Bike and Pedestrian Accommodations along the Hanover Street Corridor

From the City’s standpoint, a higher level of investment in downtown (including both new investments and reinvestment in existing improvements) will generate much needed additional tax revenues to support municipal services. For residents, a more vibrant downtown will offer enhanced opportunities for living, shopping, dining, work, recreation and enjoying the considerable arts and cultural offerings already in downtown. As noted in market analysis prepared as part of this Plan, downtown’s potentials are limited more by the availability of development and redevelopment sites than by the level of market support potentially available.

Project 3 - Construct Roundabout at Hanover Street / High Street / Hough Street intersection

5: Connect downtown, neighborhoods and recreation with a more walkable, bikeable street and path network Beyond the Hanover Street improvements described above, the downtown area will become a more convenient, welcoming and safer place to walk, bike and use transit. “Complete streets” serving all transportation modes will connect with neighborhoods in all directions. Circulation by foot, bike, car and bus in downtown’s core will dramatically improve with the reconfiguration of traffic flow around Colburn Park. Key projects related to advancing the Downtown Connectivity include: Project 1 - Convert North Park Street to One Lane Project 2 - Convert West Park Street, South Park Street and East Park Street to Two-way Streets Project 3 - Improve Pedestrian Spaces and Streetscape

6: Create Organizational Capacity With the key components of the Plan identified in Key Concepts 1-5, the City will need to build its capacity in ways that enable the Concepts to become translated into projects and actions over time as funding sources and tools are put in place to facilitate implementation. As such, the City will need to target efforts that will unlock its economic potential, enhance existing partnerships, and identify financial tools

There are several elements that loom large in terms of how to strengthen downtown, so that it can realize its long term potentials. Advancing the Plan and facilitating the evolution of the downtown will need to consider key actions that will build capacity and leverage economic conditions and set the stage for improved organizational structure. This will require the development of the following: Project 1 - Establish Downtown Partnership Establishing a Downtown Partnership that leverages existing organizations and provides a platform for the downtown to advance initiatives that build prominence and visibility. The Partnership would be charged with advocating the Vision, staging special events, managing downtown, and promoting downtown. The Partnership is an essential element to the evolution of downtown to a more prosperous future. The first step in moving forward is to create a board of directors for the partnership, drawing from downtown stakeholders (residents, business owners, real estate investors). Once the Board is in place, the bylaws and charter of the Partnership can be drafted and a work program developed. Then, a budget and funding alternatives (private, public, (Working Draft) Downtown Vision Plan and Tunnel Assessment

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Executive Summary

joint and special district funding) can be explored. Project 2 - Develop a TIF District Developing a TIF District that will fund key infrastructure improvements in downtown by assigning future increased tax revenues arising from new investments and property value increases within a designated area. The first step in creating a TIF district is to initiate a TIF district feasibility study. The study can be undertaken under the oversight of the Downtown Partnership. The study should define the boundaries of the district, summarize the public infrastructure improvements likely to be initiated and their costs drawing from the recommendations of this Vision Plan (redevelopment of the tunnel, for example), model the financial dimensions of the TIF plan and draft the appropriate ordinances for city adoption. Project 3 - Supporting an Active Downtown Creating a Special Tax Assessment District to support Downtown activities. A Special Tax Assessment District is a funding mechanism under which an add-on to the basic tax rate is deployed with the funds earmarked to downtown management, marketing and improvements. Such districts are authorized in New Hampshire as Central Business Service Districts under RSA 321:120. Intown Manchester is a longstanding example of a Central Business Service District, established in the 1990s. The next step in establishing such a district should fall under the purview of the Downtown Partnership, possibly with guidance from the City’s Planning Department and its consultant.

Urban Design Framework In support of the Key Concepts that are outlined in the following pages within this section, Figure ES.4 outlines an Urban Design Framework that conveys many of the goals and objectives that underpin the ideas

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that are conveyed in the Plan. This diagram is used throughout this section to reinforce the idea that there is an underlying “framework” of ideas that will advance various projects throughout the downtown. The elements shown in the framework address the following ideas. 1) Areas where streetscape improvements are a core aspect of the Plan 2) Areas where pedestrian and traffic improvements are a core aspect of the Plan 3) A general outline of potential opportunity sites that could accommodate parking or development 4) Opportunities to connect the downtown through the creation of a Promenade that would connect the major destinations within the core of downtown 5) Areas that are well-suited for crosswalk improvements that will better connect pedestrians throughout the downtown 6) Opportunities for recreational paths that will provide connections to and between trails and destinations 7) Potential alignment of the Long Term Mascoma River Greenway 8) Indications of the potential for new streets that could connect the downtown 9) Areas where enhancing the streetscape edges and façade improvements should be advanced

Implementation Strategies Implementing the six “Key Concepts” presented in Chapter 5 will require a multitude of strategies and moving forward through a process. It will take time, and as this chapter lays out, will involve many

Figure ES.4 - Urban Design Framework

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Executive Summary

incremental steps that collectively help build towards the Downtown Vision. As summarized on the implementation matrices in Chapter 5 for the projects that support the Key Concepts, four key types of implementation strategies have been suggested. These range from strategies to support the funding of projects, strategies to help assure the urban planning and design outcome supports the Vision, strategies for integrating key infrastructure into the pursuit of the Vision, and strategies for organizing the community to both advance and manage a new Downtown Lebanon. Chapter Six highlights these key strategies and provides useful guidance for future decision making.

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